COMMUNITY BASED OPERATION AND MAINTENANCE MANAGEMENT GUIDELINE HAS 8 PARTS

Transcription

1 COMMUNITY BASED OPERATION AND MAINTENANCE MANAGEMENT GUIDELINE HAS 8 PARTS PART - A INTRODUCTION TO O&M MANAGMENT PART- B PART - C PART - D PART - E PART - F PART - G PART - H DESCRIPTION OF WATER SOURCES AND TECHNOLGIES TECHNICAL OPERATION AND MAITENANCE REQUIRMENTS COMMUNITY BASED RURAL WATER SUPPLY SCHEMES MANAGMENT RURAL WATER UPPLY SPARE PARTS MANAGMENT M&E AND REPORTING SYSTEM WATER SUPPLY SAFETY PLAN PREPARATION OF ACTION PLAN

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3 Community Based Operation and Maintenance Management Manual for Rural Part - D: Rural Water Supply Scheme Management Manual Table of Contents List of Tables ii List of Figures ii Lists of Boxes ii List of Annexes ii 4. RURAL WATER SUPPLY SCHEME COMMUNITY MANAGMENT Introduction Objectives Purpose of the Manual Community Managed WASH Systems Community Managed O&M What is the Community? Partners in Community Management Organizational Structure for O&M Management Single Tier Community Management Roles and Responsibilities of various actors in O&M Management WASHCOs Pump Attendant/Care Taker (PA/CT) Beneficiary Community Formation of WASHCO WHAT IS WASHCO? Structure of WASHCO Committee Composition and Member Gender aspects of the WASHCO s Task of WASHCO Members How to elect WASHCO members? What is tenure of WASHCO members? Position of WASHCO to other stakeholders in the community Evaluation and Re-Election of the Committee Legal Status of WASHCO Handing Over Formulation of By-Law Sample of By-Law for WASHCO s Sources of Income and Financial Management of Water Scheme General Source of Income Users Fee Payment Condition Identifying operation and maintenance costs What is O & M Cost? Community- based Cost Recovery 23 Part-D: Page-i

4 Recovery of O&M costs only, with initial use of subsidies Water Supply Tariff Daily Financial Management Decision on Payment Method Options for Collection of O&M Fund Formulation of User Households List Bank Account Opening Management of Daily Cash Movement Basic Elements of Financial Records Access to other sources of funding Tapping into existing community contribution Cooperative funds Subsidies Grants Micro-credit O&M Information Management 38 Annexes: FORMATS 39 List of Tables Table 4-1: Roles and responsibilities of beneficiary community 9 Table 4-2: General tasks assigned for WASHCO members 11 Table 4-3: Procedures in the Formation of By-Law 15 Table 4-4: Suggested Schedule of Spare Part Replacement 22 Table 4-5: Income and Expenses Book Model 31 Table 4-6: A Typical Cash receipt Registration Form/ Invoice 32 Table 4-7: A Typical Cash Payment Invoice Form 34 Table 4-8: Model of Payroll List 35 Table 4-9: Per-Diem Payment Form 35 List of Figures Figure 4-1: WaSHCO s Stakeholders 4 Figure 4-2: Organizational structure for O&M Management-1 4 Figure 4-3: Single Tier structure for Community O&M Management 5 Figure 4-4: Roles of key actors in CBMS for Rural WSS 6 Figure 4-5: Structure of WASHCO for Point Water Sources 10 Figure 4-6: Demonstration of WASHCO in relation to other stakeholders 14 Lists of Boxes Box 1: Specific Objective of the Guideline 1 Box 2: principles of Community managed O&M 2 Box 3: Roles and Responsibilities of WASHCOs 7 Box 4: Roles and Responsibilities of Pump Attendant/Caretaker 8 Box 5: Operation and maintenance costs include 21 Box 6: Options for collection of O&M Fund 28 List of Annexes Annex A: Basic Ledger of Water Fee Collection 39 Annex B: Income & Expense Ledger 40 Annex C: Cash Receiving Voucher 40 Annex D: Cash Collected reporting formats 41 Annex E: Preparation & Constitution of a WASHCO 42 Annex F: Sample Constitution of Rural Water Supply WASH Committee 43 Annex G: Rules & Regulations of the WASHCO 46 Part-D: Page-ii

5 4. RURAL WATER SUPPLY SCHEME COMMUNITY MANAGMENT 4.1 Introduction Community Based Management (CBM) is the process of empowering the community members to assume the lead role in decision making about the levels of services they require, whilst organizing themselves to plan, implement, operate and maintain their water supply and sanitation facilities. CBM is widely endorsed and regarded as one of the best options for O&M of communal water supply facilities in rural areas. It has several benefits in terms of sustainability, empowerment of communities and low cost nature. It has been promoted by government, and shall continue to be the preferred option to be promoted by all stakeholders in the sector. However community participation and involvement at decision making level right from the beginning of the water supply development is a pre- requisite for it to succeed. Furthermore, continuous community sensitisation and mobilisation is required. It was indicated in the assessment report that about 25% of the existing water supply schemes were non-functional, as reported in the WaSH Inventory of the Some of the core issue for non-functionality is that the lack of functional community managing the schemes, reluctant to contribution for O&M and poor spare part management. These nonfunctioning facilities depict a waste of resources and heighten the need for a framework that defines and promotes Community Based Management System (CBMS). This manual is prepared to establish solid community-based management system through capacity building of water user communities represented by Water, Sanitation and Hygiene Committee (WASHCO). The O&M manual has been prepared to be used as a basis for bridging the gaps which have been indicated in the assessment report and design for use at community level. 4.2 Objectives Community Management and Ownership Manual have been prepared for the purpose of providing guidance principles for water supply O&M. The manual contains task management and personnel management. By task management it is meant the management of the activities set in the water supply and sanitation system so as to ensure that the system is reliable and sustainable. Regarding personnel administration it is meant that the management of the personnel who are assigned to do O&M tasks. Box 1: Specific Objective of the Guideline To determine the right and obligation of the community over the scheme, To define the responsibility of the WASHCO, To enhance and develop common responsibility among stakeholders for the water scheme reliability and sustainability, To bring active community participation that lasts long under sustainable condition. To provide basic and practical knowledge & skills on how to manage and maintain the completed water schemes which are necessary as daily water scheme management. Part-D: Page-1

6 4.3 Purpose of the Manual This part-d manual is prepared as field implementation manual for WASHCO who takes responsibility of daily operation, maintenance and management of the water scheme. This manual, as management back-up-knowledge and references, focuses on areas of (i) community organization and management and financial management. The original generic O&M manual divided as community based management and supporting organization involved in O&M management. 4.4 Community Managed WASH Systems Once construction is done the support agency and government staff "hand over" the system to the community and go off, saying that the community should from now on manage the system. We assume that they can and will. Often too little thought is given to putting in place the conditions for sustained community management Thus, in WASH system community management refers to the level at which the community exercise responsibility for decision making and control over subsequent education of these decision during project development and a capability of a community control and strongly influence the development of its water supply and sanitation schemes, which has three basic components: Community Managed O&M Community based managed operation and maintenance has the following principles. These are: Box 2: principles of Community managed O&M Community managed O&M based on the following principles: Communities must be empowered to control and make their own decisions concerning their water supply and sanitation situation. Communities must be committed, responsible and be ready to pay for maintenance of water supply facilities Communities must take the initiatives to solve their own problems rather than solely depending on outsiders. Communities must make informed decisions Communities must organize and mobilize local resources such as labor, money and other materials to O&M of the schemes Communities must maintain their water supply facility and repair it if it breaks down. Communities should monitor progress and evaluate impact. Part-D: Page-2

7 In the Community Managed O&M, the representative of the user-group (WASHCO) i.e. the Community is the O&M Manager. Allocated funds are transferred to a special CM- O&M account through a financial intermediary (e.g. micro-finance institution) with Woreda WaSH Team (WWT) authorization, are withdrawn by community signatories for approved expenditures on operation and maintenance activities. The WASHCO is directly responsible for contracting, procurement, quality control and financial accountability to the community and to the Kebele and Woreda Administrations. There is no hand-over. The user-community owns the project from the beginning. CM-O&M contribution mechanism can also include community financing mechanism through the government financial system. The fund/contribution flow (disbursement, settlement and replenishment) mechanism to the community through the government financial system is also the other option for community financing in CM-O&M which requires developing and testing What is the Community? We have been talking a lot about COMMUNITY, but what or who do we mean by COMMUNITY? We are talking about a WATER USER COMMUNITY/WASHCO - people who live around a borehole scheme, a shallow well or piped system and share the use of this facility. They form a community they are neighbors, draw water from the same water point, and can work together to improve their water, sanitation, and hygiene. For a single water point (e.g. borehole scheme) the WASHCO will be small - people living in one section of a village. For a piped scheme, the water user community will be large - members of a whole village or several villages. User communities will take the lead to develop water supply and sanitation facilities for their own areas. They will come together, work out what they want, and apply for help to develop these facilities. So the COMMUNITY is YOU you and your neighbors. Let s start talking about: Problems with the existing water supply facilities How can you improve these facilities How you can work together to plan and make these improvements Partners in Community Management Community management puts water users in charge of their own water system. The most effective community management is an evolving partnership, in which a community centred organization typically a WASHCO draws on resources from within the community, Part-D: Page-3

8 from other communities, and from a variety of other outside agencies. Potential partners of WASHCO s include: Figure 4-1: WaSHCO s Stakeholders Community Woreda Authority WaSHCO Private Sector /Service Providers NGOs/Don ors The Rural WASH O&M shall be carried by the WASHCO with technical support and backup from the Woreda, Zonal and Regional Water Office/ Bureau establishments. The immediate government body who shall give technical support and backup to WASHCO is the Woreda Water Office (WWO) Organizational Structure for O&M Management-1 Figure 4-2 shows the organizational structure at Woreda level to manage the operation and maintenance of water supply schemes. The above organization structure has broken down to show the involvement of various bodies at Woreda level. Figure 4-2: Organizational structure for O&M Management-1 Tier-1: Woreda Woreda Cabinet CU RWSS Supplies & Management Tier-2 Catchment /Ward Monitoring & Feedback Monitoring WEWs, CBOs etc Flow of Spare parts from shop to the community Monitoring Community Contribution with Banking System Community Contribution without Banking System Tier-3 Community APMs WASHCO Caretakers Part-D: Page-4

9 4.4.5 Single Tier Community Management For simpler technologies like protected springs, or shallow wells and with good community organisation, CBMS may be modified to minimise or eliminate the need for Government involvement. It is cheap and the time between break-down and repair is short. This requires that simple guidelines are available to the communities. Depending on the location and type of water source, it may be necessary to boil water before consuming it since water quality monitoring is not carried out. Figure 4-3: Single Tier structure for Community O&M Management Private Sector Pump and part suppliers Area Pump Mechanics WASHCO Community Roles and Responsibilities of various actors in O&M Management Implementation and operation and maintenance (O&M) of rural water supply (RWS) activities shall be carried out through a partnership of various key actors. The WASH strategy formally brings together active stakeholders at Woreda level to support the community in planning and coordination of the implementation of RWS throughout the Woreda. This section identifies and recognizes the communities involved at different levels, their roles and responsibilities, and how they relate to one another for implementation and O&M of RWS activities. Part-D: Page-5

10 Figure 4-4: Roles of key actors in CBMS for Rural WSS Federal MoWE and Regional Water Bureaus Provide financial & technical back-up support to Districts Ensure availability of spare parts in the country Policy, Regulation and Monitoring Monitor water quality Development Partners/Financers Financing Technical Assistance Study Key: Zone and Woreda Water Offices Financial and Technical Back-up Support to WASHCOs Plan for and co-finance training of HPMs, Plumbers, etc Provide Tool Kits and Transport to HPM/Plumbers Supervise WASHCO and the Private Sector WASHCO Plan for & oversee O&M; report problems Collect and utilize O&M funds Together with users select caretakers Engage HPM/Plumber and pay for spares and repairs. Monitor own and external activities Source Caretaker Organise community for orderly use Clean surroundings of water facilities Undertake minor service (and repairs) Direct Support and/or implementation Information Flow Outcome NGO Financing Mobilization and training Planning and implementation Follow-up support Private Sector Manufacture/supply and distribute tools and spare parts Train HPMs, Plumbers, etc Maintain and repair facilities Manage water facility on behalf of community Provide other services as required Water User Community Participate in planning and decision making Elect WASHCOs Participate in site selection, improving sanitation, cleaning source surroundings, etc Determine and make contributions in cash/kind to capital and O&M costs Enact relevant by-laws Well Maintained water facilities Increased use and sustainability Part-D: Page-6

11 The roles and responsibilities for the support organization has been presented in the other manual of the support organization based O&M Management manual WASHCOs The job of this committee is to take the lead in managing the water facilities. They have a number of responsibility and tasks: Box 3: Roles and Responsibilities of WASHCOs Roles and Responsibilities of WASHCO s...: In general responsible for the management of the water supply schemes and establishing of the tariff collection pattern Collects O&M Management funds from the user community and saves the money in Credit and Saving Institute or in another nearby Bank Reports the collection of the O&MM fund and other O&MM activities to the Woreda Water Office regularly To employ water scheme personnel, if necessity is arisen, and set salary and obtain the approval of the users assembly Shall supervise the activities of PAs/CTs and keep the maintenance logbook and other important documents of the scheme in the Who is providing metal boxes to WASHCOs? Shall quarterly inform the community about the financial status of their scheme Shall initiate and follow up preventive and corrective maintenance Is responsible for resolving the complaints of the community about the quality of the service they receive from the schemes Is responsible for the procurement of spare parts, bill collection tickets and other documents necessary for O&MM. To make regular and close communication with Woreda Water Office on any issues related to O &M and management of water scheme To prepare work plan for the rehabilitation the water facility in consultation with Woreda Water Office Pump Attendant/Care Taker (PA/CT) A caretaker is the key person for preventive maintenance and daily operation of the water supply facility. This section includes roles and responsibilities of caretakers, Preventative maintenance activity and Community sensitisation on O&M by caretakers. Caretakers, attendants and operators are men and women chosen by the WaSHCO to operate and maintain water supply facilities. Part-D: Page-7

12 The following criteria should be taken into consideration when selecting the caretaker/attendant. Box 4: Roles and Responsibilities of Pump Attendant/Caretaker Criteria for selection of caretaker/attendant: Good motivation Authority and respect to control use of facilities Able to carry out maintenance and small repairs after training Good communication with women and men about water use and hygiene Living near the water facility Seldom absent for long periods Likely to remain in the community Completes training successfully Able to keep records - not always a requirement but level of literacy to be stipulated if necessary. Roles and Responsibilities of Pump Attendant/Caretaker Is responsible for conducting preventive maintenance and recording both corrective and preventive maintenance activities carried out Is responsible for identifying the corrective maintenance needed and reporting to the WASHCO for action is responsible for following up the corrective maintenances carried out by artisans and reporting to the WASHCO Conduct routine services of the hand pump (e.g. greasing of chain, tying of loose nuts, check of pumping rate, etc.) and appurtenant facilities. Conduct minor hand pump repairs. Locking and opening of water facility as scheduled To keep the equipment operation follow-up card at the proper place and avail on request to the body that needs the information To show the beneficiary how to use the scheme properly Sensitize the community on the usage of the water supply facility. Enforce agreed guidance on the water uses. Keep records of households drawing water from the water facility To report any break down or damage on time to the concerned. To keep and utilize the maintenance toolkits To prepare O&M report and submit to the WaSHCO Part-D: Page-8

13 Beneficiary Community Table 4-1: Roles and responsibilities of beneficiary community Roles To get the service without any discrimination. To be elected for or elect the water supply and sanitation committee. To elect caretaker for the scheme and fix the salary. To decide on the type of tariff rate and the amount to cover running and maintenance cost and the like. To select the site of the water source and the water point. To decide upon the expansion and choice of technology. To decide upon the type and amount of contribution whenever the need arises. To fix the amount of allowance for the water committee member. To attend the general meeting. To decide on free services provision of water for individuals who are not capable to pay for the service. To decide the type and the amount of incentive that shall be given for the committee members. Responsibilities To use the water scheme properly. To safe guard the scheme from damage or abuse. To be involved actively in every activity that shall be significant and required for the scheme, e.g. construction of access road, clearing the surrounding areas of water source and water point. To attend the general meeting that shall be arranged by the committee. To pay on time users fee that shall be decided on the general meeting. To report on time any break down or unusual conditions of the scheme to the concerned body. To safe guard the water source from pollution and keep the scheme under good sanitation condition. To co-operate with the water supply, sanitation and hygiene committee and caretakers. To perform every activity but only significant for the scheme that shall be assigned by the committee chairperson, for instance conveying message to the concerned bodies. To adhere to the regulation set to manage the scheme Formation of WASHCO WHAT IS WASHCO? Water, Sanitation and Hygiene Committee, usually shortened as WASHCO, is a management committee made up of about 5 to 7 people (the number can vary) who live in the user community, who fulfill the above mentioned roles and responsibilities Structure of WASHCO In general, five (5) to seven (7) members shall be elected in the community mass consultative meeting for WASHCO who manage the point-source type water scheme such as shallow well/deep well with hand pump, on-spot spring. In case of piped line water scheme, a committee is also formed at each water point (like tap committee). Part-D: Page-9

14 Figure 4-5: Structure of WASHCO for Point Water Sources General Assembly Caretakers: *Caretakers are persons in charge of daily checkup and minor repairs of water scheme. They are independent from WASHCO (not member of WASHCO Chairperson Secretary Casher (Accountant) Store keeper Inspector User Household User Household User Household User Household Committee Composition and Member i) Composition Among the committee members at least three of them (more than 50%) should be women and should play key managerial role. This is due to the fact that the woman bear the maximum burden of water related activities. ii) Members The committee shall have the following members: 1. Chairperson 2. Secretary 3. Cashier/treasurer 4. Store keeper, 5. Inspector Gender aspects of the WASHCO s A balance of men and women on WASHCO s may help to achieve, but not necessarily ensure, an equitable division of work and responsibilities between men and women. The aim is to avoid either men or women doing all the work or making all the decisions. Gender often plays a role in the division of tasks. A man usually chairs a committee but a woman may be secretary or treasurer. Widespread experience indicates that women treasurers often perform better than men but appropriate training is required. The Dalocha water supply scheme fully managed by women, which is an exemplary O&M management, indicated that women are responsible to manage the schemes. Part-D: Page-10

15 Task of WASHCO Members General tasks assigned to each member of WASHCO are described below Table 4-2: General tasks assigned for WASHCO members No. Members Duties and Responsibilities 1 Chairperson Provide leadership to the overall WASHCO activities Approve payments Supervise the activities of the cashier Order purchase of Spare parts Ensure the collection water tariff and other incomes Arrange services for maintenance in consultation with Woreda Water Office. Facilitate the proceeding of general assembly of the community Hold regular WASHCO meeting as well as ad-hoc meeting when necessity arises Attend meetings at Woreda or Regional levels representing the WASHCO. Make official communication and sign on behalf of WASHCOs with public institutions, NGOs and private firms representing the WASHCO. 2 Secretary Prepare the minutes of meetings of the general assembly as well as of regular and ad-hoc WASHCO meetings Perform all activities of the chairperson in his/her absence. Prepare receipts for collection of incomes Prepare payments and submit for approval of the chairperson Record all incomes and expenses in account book Make sure that collection of incomes and effect of payments shall be made only by the cashier. Prepare monthly and quarterly performance and finance reports of WASHCO for approval of the chairperson Keep all financial and administrative records of WASHCO properly If the deposit of the WASHCO is at bank or approved institution by general assembly, he/she will be co-signatory with the chairperson and the cashier. In case of cash payment, he/she will be co-signatory with the chairperson. Prepare, contract agreements with service providers 3 Cashier Collect water fees or other incomes based on the receipts (Treasurer) prepared by secretary Effect payments in accordance with approved documents, by chairperson and secretary. Keep the bank deposit slips or approved institution for record Request petty cash for immediate expenses for O & M of the water scheme, the amount shall be fixed by the general assembly. Keep all the documents at hand properly for inspection and auditing. 4 Store Keeper Keep the properties of the water facility by registering in the Part-D: Page-11

16 No. Members Duties and Responsibilities format prepared by Woreda Water Office. Issue items upon the approval of chairperson and secretary. Prepare report on the status of fast moving items for replacement and purchase. Keep all records in proper for inspection and inventory 5 Inspector Inspect the financial management of WASHCO. Supervise the proper utilization of purchased items Check the monthly water consumption and respective income. Ensure the expenses of WASHCO are as per the set acceptable procedure and regulations. Act as internal auditor. Inspect the records of secretary and cashier. Prepare a report on the overall water supply management of the water scheme. Present the report to the general assembly How to elect WASHCO members? Whom to elect? Is the participation of main water users (often they are women) promoted? The election meetings must be announced indicating that the participation of water users i.e. mainly the women should be promoted. Traditionally, mainly the men are participating in decision-making meetings. If more men attend, mainly the men will be elected. Special care need to be taken to explicitly announce that it is desirable that those actively collecting water and thus using the source are participating in both the election and the committee. If a committee comprises only of men who never go to the source, they are not likely to discover anything wrong with it and take early action. Are more users given chance to be candidate of members? Another risk is that unless people are specifically sensitized to the need for having actual users in the committee, very often the existing local leaders are often appointed, although they may not have the time to participate fully. A local spread of responsibilities will increase democracy and strengthen capacity and responsibility. Is committee representative of all users? This is the best way to avoid dormant or dying committees. Members who drop out also need to be promptly replaced. The committee should if possible be representative of all users. The community selects representatives of: Different socio-economic groups Different education Different ages Part-D: Page-12

17 Both men and women (50%-50% is desirable!) From existing groups What are criteria to select effective WASHCO members? To select effective members of WASHCO, the following criteria are to be fulfilled. Good ethics, example to the other community members Responsible and honest Have good motivation to work for sustainable community water supply More than 18 years old At least 5 years living in the community Able to read and write Willing and able to spare enough time to serve the community including promoting appropriate sanitation and hygiene practices in collaboration with health extension workers Permanent user of the water scheme Free from corruption and prioritize the benefit of the community rather than personal interest Positive to make the by-law of the water scheme acceptable for the community What is tenure of WASHCO members? It is better to elect members every three year at maximum in order to introduce democratic management, in other words, to avoid monopolized management. Many experiences have shown that if same members keep same positions, they may consider the water scheme as their own property. Then, the democratic management system tends to be more corrupted Position of WASHCO to other stakeholders in the community Main actors in acquisition, utilization and management of water and human resources can be categorized into seven organizations (or groups of people); (i) Woreda Water Office as government body; (ii) private area mechanics or spare-part distributors available in local market; (iii) Kebele as community governance body; (iv) individual household as users; (v) social organization that maintain human relations in peace and order including Idir or religious organization; and (vi) Water Supply Users Association (including WASHCO) as intermediate organization through which relevant interactions take place for consensus building, technical interventions and resources supplement that are needed to ensure sustainability of operation and management of individual water supply facility. In other words, the prime role of Water Supply Users Association is to combine social consensus among main actors, technical ideas and resources into one function of sustained operation and management. Part-D: Page-13

18 Figure 4-6: Demonstration of WASHCO in relation to other stakeholders Woreda Water Office as government body Dev t org. Household as Basic Unit Water Supply Users Association as intermediate Private mechanic or Spare part distributor as Social org. Kebele as community governance Evaluation and Re-Election of the Committee The beneficiary community and the Woreda Water Office shall evaluate the performance of the committee. If the member of the committee fails to discharge its duties and responsibilities the general meeting shall be called and re-election shall be undertaken Legal Status of WASHCO One of the main issues that affects management and maintenance of communal water supply facilities is the understanding of ownership. The Water resources policy described that create and promotes a sense of awareness in communities of the ownership and their responsibilities for operation and maintenance of water supply systems and develop participatory management practices. The issue of community ownership is made difficult by the loose nature of the community as an entity. In such instances it becomes difficult for communities to assume full responsibility and accountability for the maintenance of facilities. Woredas and other agencies provided facilities without adequately involving communities. Now communities are involved to varying degrees by the different sector actors in planning, provision of labour and contribution of cash towards capital costs as a means of instilling the sense of ownership and responsibility. The ownership of the facility needs to be clearly defined at the planning stage. Where CBMS is to be applied, this leads to the roles to be played by the parties being clearly demarcated. WWO can facilitate the registration of the WASHCOs as legal entities in some instances and commit Sub-kebeles to take legal responsibility in others. This intrust arrangement is in-tended for an interim period only; the ultimate goal is to achieve Part-D: Page-14

19 full community ownership of facilities. WASHCOs could also establish themselves as CBOs, and register with the RWB to become legal entities Handing Over Every WASHCO member shall handover to the concerned body all documents and materials that may belong to the WASH scheme on termination of the committee membership for different reasons. The handover activity shall be done using the handover format and at the presence of Woreda Water Office representatives Formulation of By-Law The by-law is a summary of ground rules for the use and the management of the water scheme and management. The formulation of the by-law is an important step to have water users consider the water scheme as their own property by discussing different topics related to the use and management of water scheme in a mass meeting. Table 4-3: Procedures in the Formation of By-Law Activity Formulation of By-Law Objective Main Organizers Timing Expected Participants Procedure Tips! To establish common rules and basis of management of water scheme through participatory and democratic way WASHCO with assistance from Woreda Water Office staff During the planning (before starting operation) At least of two thirds (2/3) out of a total user household heads have to attend that mass meeting All community members should be invited to the community meeting such as village leaders, prime users (women), kebele executive and kebele chairperson as mentioned earlier Explain the objective of a meeting Woreda Water Office staff explains topics to include in the bylaw. Woreda Water Office staff facilities participants to discuss and decide operation and management rules. One of WASHCO members (e.g. secretary) keeps notes. After completion of the draft by-law, one of WASHCO members (e.g. secretary) read all the points decided for approval of the participants. This session requires sufficient time (does not need to be completed in a hurry) so as to allow users to consider the water scheme as their own property by discussing different rules. In this regard, if one session is not enough in consideration of the understanding level of the participants and their time available, it is recommended to divide into two sessions. Part-D: Page-15

20 Sample of By-Law for WASHCO s Samples of By-Law for WaSHCO s By-Law for Water Users Association Considering the need of appropriate organization organ to take care of the overall water supply management of our community on water scheme in sustainable manner and promote improved hygiene and sanitation practices, Water Supply Users Association has been formed by the beneficiaries of the water scheme of in accordance with the regulations and rules stated below. Article -1: Name The name of association shall be Water Supply Users Association; hereafter called the Association. Article 2: Address The office of the Association shall be in Article 3: Objectives 1. Ensure sustainable operation and maintenance of Community s water scheme. 2. Promote improved hygiene and sanitation practices in the community 3. Ensure direct participation of the water users in the water supply management of the community s water scheme 4. Set water tariff 5. Assign appropriate water scheme operator (care taker) 6. Carry out other activities that promote sustainable operation and maintenance of community s water scheme and improved hygiene and sanitation practices. Article 4: Source of Income The following shall constitute the source of income of the WASHCO: 1. Water tariff being collected from the beneficiaries 2. Subsidy and donations that might be extended to the WASHCO Article 5: Membership 1. Any person residing in the user community can join the WASHCO on voluntarily basis. 2. The membership shall be valid after being signatory of this by-law Article 6 Right and Obligations of the members 6.1 Rights 1. Use the water facility of the community Part-D: Page-16

21 2. Elect and be elected in WASHCO 3. Participate in General Assembly and cast their ballot 6.2. Obligations 1. Abide by the By-law of the WASHCO 2. Pay for the water supply service according to the tariff set by the WASHCO 3. Participate directly in the operation and maintenance of the community s water scheme Article 7: Failure to meet membership obligations A member who fails in fulfilling his/her obligations shall be deprived the right of the Association s membership. Article 8: Organizational Management of the Association The Association shall have the following organizational management arrangements: 1 General Assembly 2 Water, Sanitation and Hygiene Committee (WASHCO) Article 9: The General Assembly The General Assembly is comprised of all members of the Water Supply Users Association and shall discharge the following responsibilities: 1. Elect the members of the WASHCO 2. Define and determine their duties and term of service 3. Make decisions on critical issues of the Association. Article -10: Water, Sanitation and Hygiene Committee (WASHCO) The WASHCO shall comprise of 5-10 members, at least half of the members must be women. The core members of WASHCO are Chairperson, Secretary, Cashier (Treasurer), Store Keeper and Inspector. The committee shall have the following powers and responsibilities 1. Implement the decisions passed by the General assembly 2. Execute the operation and maintenance of the community s water scheme 3. Ensure the proper utilizations of Association financial and material resources 4. Suspend the membership of users who fail to meet their obligations. 5. Maintain partnership with stakeholders on sustainable operation and maintenance of community s water scheme and on promotion of improved hygiene and sanitation practices. Article -11: Duties and Responsibilities of WASHCO members 11.1: Chairperson Provide leadership to the overall WASHCO activities Approve payments Part-D: Page-17

22 Supervise the activities of the cashier Order purchase of spare parts Ensure the collection water tariff and other incomes Arrange services for maintenance in consultation with WWO. Facilitate the proceeding of general assembly of the community Hold regular WASHCO meeting as well as ad-hoc meeting when necessity arises Attend meetings at Woreda or Regional levels representing the WASHCO. Make official communication with public institutions, NGOs and private firms representing the WASHCO. 11.2: Secretary Prepare the minutes of meetings of the general assembly as well as of regular and ad-hoc WASHCO meetings Perform all activities of the chairperson in his/her absence. Prepare receipts for collection of incomes Prepare payments and submit for approval of the chairperson Record all incomes and expenses in account book Make sure that collection of incomes and effect of payments shall be made only by cashier. Prepare quarterly report on financial and other activities of WASHCO for approval of the chairperson Keep all financial and administrative records of WASHCO properly If the deposit of the WASHCO is at bank or approved institution by General Assembly, he/she will be co-signatory with chairperson and cashier. In case of cash payment, he/she will be co-signatory with chairperson. Prepare, contract agreements with service providers 11.3: Cashier (Treasurer) Collect incomes based on the receipts prepared by the secretary Effect payments in accordance with approved documents, by chairperson and secretary. Keep the deposit slips bank or approved institution of for record. Request petty cash for immediate expenses for operation and management of the water scheme, the amount shall be fixed by the general assembly. Should keep all the documents at hand properly for inspection and auditing. 11.4: Store Keeper Keep the properties of the water facility by registering by the format prepared by Woreda Water Office. Issue items upon the approval of the chairperson and the secretary. Part-D: Page-18

23 Prepare report on the status of fast moving items for replacement and purchase. Keep all records in proper for inspection and inventory Inspector Inspect the financial management of WASHCO. Supervise the proper utilization of purchased items Check the monthly water consumption and respective income. Ensure the expenses of WASHCO are following acceptable procedure and regulations. Act as internal auditor Inspect the records of the Secretary and the cashier. Prepare report on the overall water supply management of the water facility. Present the report to the general assembly of the beneficiaries. Article -12: Cautions and Penalty Cautions and Penalty for Individual WASHCO member The performance of water scheme shall be monitored by WASHCO under the supervision and guidance of Woreda Water Office. If, in the opinion of WASHCO, any user household shows that individual household is unable to discharge duties set in the By-Law due to the following reasons, WASHCO reserves the right to withdraw the usufruct right from individual user of the household: (i) failure in regular payment of water fees consecutively three times against advises and warning to be made by WASHCO; and, (ii) Unclearness or dishonesty is observed to abide by the By-Law. In the case of failure in regular payment of water fees consecutively three times, the representative of the individual household is advised to pay penalty to WASHCO at the rate of Birr or by any other equivalent form of penalty as. In the case of unclearness and dishonesty practices, the representative of the individual household is requested to make compensation by an action set as Cautions and Penalty for WASHCO The performance of WSUA as well as WASHCO is monitored by Woreda Water Office. If, in the opinion of Woreda Water Office, WASHCO shows that WASHCO is unable to discharge duties set in the By-Law due to the following reasons, Woreda Water Office Part-D: Page-19

24 reserves the right to withdraw the usufruct right from WASHCO: (i) Improper use of water scheme out of the scope of the set work; and, (ii) Unclearness or dishonesty is observed in keeping rules and regulations set in the By- Law. The WASHCO shall not transfer water scheme and related equipment and materials to any other individuals or organizations in all cases. In such case, the water scheme and related materials should be compensated by the WASHCO. 4.5 Sources of Income and Financial Management of Water Scheme General This section looks at financial aspects of water scheme management, which is an essential part of sustainable O & M and management of water scheme with regardless of type of water scheme. In the community-based water scheme management, Cost Sharing for O & M of a water scheme is an important water resources policy. The community needs to pay for maintenance & repair of the water schemes and save the replacement of the equipment. Maintenance is your job! When a part wears out, you have to buy a new part. When the facility breaks down, you have to fix it themselves or pay service provider to fix it. To take measures promptly when the water scheme gets broken down, you need to collect money in advance. With enough financial resource, you can buy spare parts and pay for a repair works and other necessary expenses. Some of this money should be used to buy spare parts in advance. Before starting concrete financial management tasks, you need to understand about the O & M cost and how to cover O & M cost Source of Income User fee which shall be paid to cover the project cost or running and maintenance cost every week / two weeks /month / year in the form of cash and/or kind. Volunteer contribution from beneficiary community or outsiders in the form of cash and/or kind. The committee shall arrange fund raising activity to collect money. In this case different systems for special contribution shall be arranged including labour and locally available material that could be converted to money. Support of money from government and non-government organization in cases of a considerable problem encountered to run the activity. Revolving fund for spare parts which shall be availed from donor or government agencies. Part-D: Page-20

25 Users Fee Payment Condition Every beneficiary household except those who shall be exempted from payment pay Birr every week/ two weeks/ month/year. The amount to be paid shall be prepared by the Committee and endorsed by the benefiting community in the General assembly. Payment in accordance with the agreed tariff, The payment shall be effected to the cashier, water point attendant or bill collectors Identifying operation and maintenance costs Box 5: Operation and maintenance costs include Material costs consumables, chemicals, energy, tools, spare parts and equipment Works personnel - staff involved in operation, maintenance, routine preventive maintenance, repairs, and construction for minor rehabilitation Management personnel - staff involved in planning, supervision, financial management, administration, and monitoring Financial costs - interest, amortization, depreciation, exchange rate variations, inflation Environmental costs - water source protection and conservation, Support costs training support, technical assistance, institutional strengthening, monitoring and evaluation Future investment costs - Major overhauls (rehabilitation), replacement, and extension Other costs transport, services paid to a private contractor, unaccounted for water due to leakage, bad administration and vandalism All the above types of O&M cost should be considered in calculating and setting of tariff What is O & M Cost? The scope of the cost recovery for a water scheme includes three groupings of cost; i. Running (operation) cost ii. Maintenance cost iii. Replacement cost For the purpose of simple explanation, the case of a hand pump, which is one of major water schemes, is shown as an example. (1) Running Cost Running cost, which is also called as operation cost, can be defined as cost required for day-to-day operation of a water scheme. Such operation cost includes in general the following items. Personnel expenses (salary for a pump attendant or guard) Overhead cost (travelling cost, communication, per-diem etc.) Office expenses (stationeries, etc.) Part-D: Page-21

26 Example: A WASHCO in XXXX Kebele employs one pump guard. Monthly running costs of XXXX WASHCO are as follows: Item Description of Expense Amount (Birr) No.: 1 Salary of pump operator (Ato XXXXXX): Stationary expenses: Per-diem for travelling to Woreda Total (2) Maintenance Cost Maintenance cost is concerned about any cost required for continuity of operation of a water scheme without any breaks including spare parts cost, repair cost, technical service fee, and so on. With regard to the regular replacement of spare parts for Afridev hand pump, it is recommended to follow a schedule below. Some parts (U-seal and bearings) need to be replaced every 6 months, others once a year, and others once a two years. Normally a community would put aside enough money to cover the FAST WEARING PARTS - parts that need to be replaced frequently. In addition, WASHCO should buy a few long wearing parts e.g. rod) - as a way of investing the money and guarding against inflation. Table 4-4: Suggested Schedule of Spare Part Replacement Part Months U-seal O-ring (big) O-ring (small) Bobbin Rod Centralizer Bearing (inner) Bearing (outer) Hanger Pin Fulcrum Pin Pipe Centralizer On average most pumps will require the following maintenance: YEAR 1: No major problems - the warranty will cover any costs during first year. YEARS 2-4: Replacement of fast-wearing parts - but no major repairs. YEARS 5+: Major faults will occur, which require help from the Woreda Water Office. (3) Replacement Cost The replacement cost includes an amount necessary to replace of equipment at the end of its service period. A service period of a hand pump lasts for 10 years under normal handling. Conceptually somebody should accumulate financial resources to procure a new hand pump in assumption that the present pump shall cease to function forever after 10 years. In other words, depreciation cost should be covered including water fees. Part-D: Page-22

27 These above three types of cost are needed to be covered through regular payment of water fees for only one single purpose. The purpose is to produce potable water for drinking continually. How and who bear those costs? Let s look at the following sub-section Community- based Cost Recovery Recovery of O&M costs only, with initial use of subsidies This consists of introducing progressively an O&M costs recovery only, mainly by subsidizing costs (for example the price of spare parts, M&E cost, the cost of fuel) at the beginning, and providing free technical support for some maintenance. Although this approach can be necessary for poor communities, the use of subsidies can send wrong signals to a market, especially for spare parts. Some arrangement will need to be made about who will recover the other costs that the community will not cover, and how. (1) Basic Concept of Cost Recovery You (community) need to build up a maintenance fund so that you can spend money to buy parts and make repairs whenever necessary. As you have seen the basic formula below, which you have to save is as below Total Cost = (1) Running Cost + (2) Maintenance Cost + (3) Replacement cost The Total Cost is Supported by Users of the water scheme! Question: How do Users support the Total Cost? That is revenue, mainly water tariff paid by users. Revenue = Tariff x Quantity Part-D: Page-23

28 (2) Some idea on the cost to be borne: How much do we need to save? Based on an extensive study conducted in Ethiopia, a required amount of maintenance cost is estimated to account for 5 % of total replacement cost annually. In this manual, cost of a handpump is considered. We shall use an example of average cost of a hand pump at Birr 8, for this paper. Example: Total replacement cost: Birr 8, Annual Maintenance cost: Birr 8,000 x 5 % = Birr Monthly Maintenance cost: Birr 400 / 12 months = Birr Taking an estimated price of a hand pump at Birr 8,000, a WASHCO accumulate at least Birr annually, while this can be interpreted as monthly reserve with an amount of Birr Example: Cost of a hand pump: Birr 8, Service period: 10 years Annual Replacement Reserve: Birr 8,000/10 = Birr Monthly Replacement Reserve: Birr 800 / 12 months = Birr Note: The above calculation is prepared without any considerations on interest rate, inflation rate, and foreign currency exchange rate Water Supply Tariff A water tariff is the rate at which users are charged for water. If cost recovery aims to satisfy an increasing demand for water then the tariff should reflect the cost of the operation and maintenance for rural schemes as stipulated in Water Resources Policy. However, many water supply tariffs do not achieve coverage of the current costs of O&M. The discussion is moved into water tariff. O&M cost recovery shall be taken into considerations under the subsequent exercises. Let us refer to the following basic formula in the cost recovery. Total Cost = (1) Running Cost + (2) Maintenance Cost + (3) Replacement cost a) Revenue: Taking the above case of XXX WASHCO, let us calculate an amount of required revenue. Revenue = Tariff x Quantity Minimum required revenue accounts for the sum of running cost plus maintenance cost plus and replacement cost in reference with the above basic formula No. 2 Part-D: Page-24

29 Example: Monthly running cost: Birr Monthly maintenance cost: Birr Monthly replacement cost: Birr Total Birr The answer to an amount of required revenue shall be Birr Then, let us move into a discussion on quantity required. b) Quantity: In accordance with technical standard, a hand pump lifts up waters with an amount of 0.2 liter per second. XXX WASHCO sets service hours separately in the morning and in the afternoon. Example: Service hours: Morning service (2 a.m. to 6 p.m.) local time: 4 hours Afternoon service (8 p.m. to 1 p.m.) 5 hours Hand pump operation hours (hours to lift up waters 8 hours) (During 9 hours of service hours, it is estimated that a hand pump serves to lift up waters approximately for 8 hours) Pumping capacity (l/s): 0.2 litre per second Pumping capacity (l/h): 0.2 (l/s) x 3,600 (seconds) = 720 litre per hour Daily production of water (=Quantity): 720 l/h x 8 = 5,760 litre Daily Quantity in m 3 : 5,760 / 1,000 = 5.76 m 3 Monthly quantity in m 3 : 5.76 x 30 (days) = m 3 Cross-check exercise: Is the above estimated quantity sufficient enough to serve for people s demand? Let us see as follows; A hand pump is ideally set to serve 350 people (70 households). 15 liter per capita per day of water is required as set in the Universal Access Plan (UAP) Therefore, a case of XXX WASHCO can be interpreted as follows. Population served by a hand pump: 350 people from 70 households Daily minimum demand: 15 liter per capita per day Daily demand: 15 l/c/d x 350 = 5,250 liter Therefore, the above estimation shall be considered as enough amounts to serve for 350 people in this case. Tariff Rate: Let us go back to the following basic formula. By quoting the above case of XXXX Water Supply Users WASHCO, the required tariff can be calculated as follows; Part-D: Page-25

30 Example: Required amount of monthly revenue: Birr Monthly amount of water production(quantity): m 3 Required tariff: / = 1.90 Birr / m 3 Monthly consumption per household: Daily consumption: 15 liter per person per day Average size of a household: 5 people Daily Household consumption: 15 l/c/d x 5 = 75 liter Monthly household consumption:75 x 30 (days) = 2,250 liter Monthly household consumption-2: 2,250 / 1,000 = 2.25 m 3 Monthly Water Tariff per household: 1.90 x 2.25 = Birr 4.30 Through the above simple exercise, it is suggested in the case of XXX WASHCO that each household shall be requested to make a monthly payment with an amount of Birr 4.30 in order to reach the O&M cost recovery Daily Financial Management Decision on Payment Method Once the amount of water supply fee is determined, WASHCO will decide how to collect the fee. Let community users decide what method will work best for them. When the community helps to choose the method of collection and the amount to be collected, they are more likely to contribute. The WASHCO should organize a general assembly to meet with the whole community to decide on how money is to be collected and managed. Financial Activity1: Objective Main Organizers Procedure Decision on Payment Method (through Community Consultative Meeting) To set the basic rules for collection and any sanctions for those who fail to contribute. Woreda Water Office (WWO), WASHCO WASHCO organize a community consultative meeting WWO explains to users the importance of users contribution to O & M fund and possible payment options WASHCO facilitate users to discuss the following; Who Pays? Some communities levy money from each individual adult; other communities levy money from each family or compound. Frequency: Some communities with a regular income pay on a regular (e.g. monthly) basis; other communities (e.g. farming communities) pay on a seasonal basis (e.g. at harvest). Amount: Some communities collect the same amount of money from men and women; others collect different amounts from men and women. Part-D: Page-26

31 Households that cannot affordable to pay from economic reasons may be exempted from payment or accepted to pay reduced amount through communal decision. When to Collect Money? When money is collected will depend on when people have money to pay. People who earn a regular income (e.g. traders) can pay on a monthly basis. Date of collection shall be fixed. For example: every 25 date of each month. Farmers, however, are more likely to contribute once a year at harvest. There may be a need to design different payment systems for the different sections of the community. Traders may want to pay a small amount after every market day, whereas farmers will prefer to pay a large amount at harvest. Seasonal Variation of Water Fee Some of WASHCO can handle water fee collection by setting different rates of water charge by season. Some cases indicate that each household pays Birr 1.0 per month during non-harvest season, while they agree to make payment of Birr 2.0 per household for six months after harvest. Who to collect? The number of collectors will depend on the size of the kebele and the payment system. If money is collected from each household, several collectors will be needed to go from house to house. If payment is done at a central location, then only a few collectors will be needed. The casher may visit each household to collect water tariff if the community size is small to cover. Money collected should not stay with collectors for more than 24 hours. Money should be paid to a casher of the WASHCO who deposit to the bank promptly. Don't let the money be used by the collectors. They may be tempted to take out some money for their own use with the intention to refund it immediately. If this practice is not stopped, however, the small amounts may build up to a huge sum that collectors cannot easily refund. Any penalty to the non-payment? Penalty shall be determined by the General Assembly. For example; Penalty against the first failure in payment: Oral warning by WASHCO Part-D: Page-27

32 Penalty against two consecutive failures in payment: Last warning by WASHCO Penalty against three consecutive failures in payment: Measure to be taken by WASHCO (e.g., double payment) If the users fails to pay in three consecutive, the users will be omitted to utilize the scheme however, it is needed to study why the users do not pay Options for Collection of O&M Fund Box 6: Options for collection of O&M Fund Options for collection of O & M fund There are many ways to raise funds for O & M : 1. CASH CONTRIBUTIONS: i) FLAT RATE: this is the common method for point sources. Each household or individual makes a regular payment at fixed amount. ii) BUCKET LEVY: In some villages money is levied at the water point on each bucket of water collected. For example, 10 cents per one Jerry-can with 20 liter capacity. Any cash transaction should be transparent with proper accountability. In some case a ticket shall be used for this payment. Pump Operator shall prepare a pile of tickets. Each ticket shall be piled in order with sequential number. A pump operator shall give collected cash with numbers of tickets that were sold to a cashier. After cross-checking between an amount of cash and tickets, a cashier shall enter cash transaction into an account book. Date Description In Out Balance XXXXXXXXX XXX XXX Sales of waters (70 tickets) IN-KIND CONTRIBUTIONS: Some farming communities ask households to contribute in the form of produce on an Part-D: Page-28

33 annual basis (i.e. after harvest) 3. COMMUNAL FARMS OR LABOUR: Some communities establish communal farms or organize communal labour to raise funds for maintenance Formulation of User Households List WASHCO needs to have an updated list of all household users in the community. Based on that households list, WASHCO prepare Household Payment List (see attached list) which can be used every month for record keeping. Financial Formulation of User Households List Activity 2 Objective To set the basic management document for proper record keeping and transparency of fee collection Main Organizers WASHCO Procedure WASHCO make a user household list (in a notebook) in collaboration with kebele chairman, kebele executives WASHCO uses the above list to check when collecting O & M fee from user households WASHCO needs to update regularly the household lists so as not to miss households who have newly joined in the community. How to Use Money should be collected in a way that promotes trust! Payments should be carefully recorded in a register of payees and receipts should be issued for all payments. The minimum record of cash transaction should be kept by the casher that is accountable to users as well as WASHCO members. Based on experiences prevailing in the region, a sample form of minimum record is presented in Table below. Table: WASHCO Basic Ledger of Water Fee Collection No. Name of Household Rate of Water Fee in Birr 1 Kefel Genzeb 1.5 Birr/Month 2 Tamen Mulate 18 Birr/Year 3 Chala Tulu 9 Birr/6 Months Month Some advanced WASHCO can also prepare a membership booklet as individual record of monthly payment of water fee. Part-D: Page-29

34 Sample of household check book Bank Account Opening For proper and safe keeping financial resources, collected cash is deposited in an account of financial institution of either the nearest bank or micro-finance institute (MFI). Woreda Water Office shall follow ordinary procedures in reference with their own experiences, so that each WASHCO can have its own the bank account or the Micro- Finance account soon as possible. Financial Activity 3 Objective Bank Account Opening To save collected money in safe and to avoid misuse of O & M fund by WASHCO To keep accountability to the water scheme users Main Organizers Procedure Tips! WASHCO WASHCO submits a letter of application to WWO Upon an official acknowledgement of the letter of application by WASHCO, the WWO issues a supporting letter to a financial institute. WASHCO goes with cash to the designated financial institute with the official supporting letter for opening an account. WASHCO is given a bank account book or statement by the financial institute. Minimum requirement of cash to open a bank account. It is said that Birr 500 is required to open an account in a certain bank. Some cases can be shared herewith to respond to such conditions. Formulation and collection of seed money. Some of WASHCO succeeded in meeting this minimum requirement of Birr 500 through collection of seed money. In this case, each registered household shall contribute equal amount of money to form group fund. For instance, there is a case that more than 50 registered households accumulated Birr 500 through even contribution of Birr 10 per each household. Part-D: Page-30